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Analysis and Policy Recommendations for Public Participation in Urban

Regeneration Projects in China
To cite this article: Xin Lu 2020 IOP Conf. Ser.: Mater. Sci. Eng. 960 032028

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WMCAUS 2020 IOP Publishing
IOP Conf. Series: Materials Science and Engineering 960 (2020) 032028 doi:10.1088/1757-899X/960/3/032028

Analysis and Policy Recommendations for Public

Participation in Urban Regeneration Projects in China

Xin Lu 1
1
College of Management and Economics, Tianjin University, Weijin Road Campus:
No. 92 Weijin Road, Nankai District, Tianjin, China

luxin199661@163.com

Abstract. Urban regeneration projects mainly include demolitions and renovations to existing
buildings, physical improvements of the deteriorating districts and the optimization of the
industrial structure, which directly relate to public interests. Public participation mechanisms
are widely used in urban regeneration projects to promote legitimacy and democracy of
decision-makings. Public participation process of urban regeneration projects in china has been
institutionalized and legal and political measures are taken by government these years.
However, the implementation of public participation process in urban regeneration projects
doesn’t achieve expected outcomes in China and there are some barriers for promoting the
public participation process in urban regeneration in practice. This article aims to make up for
the gap between theory and practice by synthesizing main problems and countermeasures for
public participation by reviewing the relevant literatures and referring to the recent cases of
urban regeneration projects in China. Firstly, this study analysed the development of public
participation process in urban regeneration projects in China and presented the current public
participation mechanisms. Secondly, major problems in participation process and the analysis
of such problems are presented: (1) It’s still doubtable whether citizens are fully rational
characters when making decisions on complex issues; (2) It’s still questionable whether
adequate staff and other necessary resources (e.g. illustrating material) are supported by proper
channels; (3) It’s still unknown whether there are a set of rules to answer the questions of
participants selection, process facilitation, times and resources organization, etc; (4) It remains
insufficient in terms of participation depth in the “participatory ladder” and rationality in the
participatory mechanism. Finally, the study proposes suggestions accordingly for such issues to
make the process of public participation more practicable.

1. Introduction
Urban regeneration means comprehensive improvements to the cities including demolitions and
renovations to existing buildings, physical improvements of the deteriorating districts and the
optimization of the industrial structure. Urban regeneration projects are complicated considering
economic, physical, social and environmental aspects. There are diverse stakeholders and conflictual
interests to be dealt with. Painful decisions are required regarding planning and implementing these
urban regeneration projects. Conflicts may arise at times when the public are closed out of the
decision-making, which further lead to suspension of the works and anti-social behaviours, bring
financial loss and instability of the society. Social risks have become one of the most influential risks
to be dealt with. The core solution to the problem is ensuring that the voice of the public to be heard

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IOP Conf. Series: Materials Science and Engineering 960 (2020) 032028 doi:10.1088/1757-899X/960/3/032028

[1]. This appears to be an important time for citizens to play a role in helping the initiator (the
government) determine the best solutions for government and the society.

Public participation is defined as the process where members of a society engage in public affairs
to make decisions with public officials [2]. The concept of public participation is originated from
political participation in 1960s whose value has long been recognized. Public participation can
improve efficiency of decisions, promote trust among stakeholders and maintaining legitimacy [3].
Though, public participation is constrained by many political, social, economic, and individual factor,
if not carefully designed or implemented, it may delay decisions, increase conflict, disappoint
participants, and lead to more distrust [4]. The process of democratization in china has been greatly
promoted and legal and political measures are taken by government these years. However, public
participation in China is still in its infancy, which is considered shallow and it mainly occurs after the
issues are framed or most decisions are made [5].

The question of how to find out the barriers of effective participation and engender practicable and
satisfying recommendations is the central issue in this research. Fortunately, an extensive base of
research provided directions for design of public participation process. The relevant research is
diffused across a diverse range of disciplines, including budgetary decisions [6], urban planning [7]
and environmental protection [8], etc. The government are urgent for solving the problems and want
the public to join in as a result of the frequent social conflicts in urban-regeneration projects in china.
The citizens’ awareness of participation is strengthened at the same time and they are eager for voice
their concerns. However, the both sides are not so satisfied with public participation process in urban
regeneration projects in practice. This paper aims to synthesize the elements from literatures to find
out the existing problems in public participation process in urban regeneration projects for overcoming
the barriers of participation in urban regeneration projects.

Firstly, this study reviews the development of public processes in urban regeneration projects.
Secondly, this study aims to identify the barriers of effective participation according to the literature
and typical cases in China. Lastly, this study seeks to offer explicit evidence-based guidelines that
have more practical value in urban regeneration projects to help practitioners design better
participation process.

2. Development of public participation in urban regeneration projects

Urban regeneration projects in China display unique characteristics due to the special history
background. Profound social and economic changes have taken place in China turning from planned
economy into market economy in 1990s. Land use policy for land leasing was revised by the central
government and the housing market are commercialized gradually. In this period, urban regeneration
projects are mainly led by developers [9]. Urban regeneration process entered a stage of rapid
expansion. Massive amount of housing and building infrastructures are demolished and reconstructed
and even those houses with good conditions are demolished to meet market demand. The major
driving force behind these regeneration projects are profit-oriented, which fail to take the willingness
of the community or citizens into full consideration [10]. Citizens’ willingness was neglected and
social conflicts occurred occasionally. Social net-works in the neighbourhood were broken due to the
reconstruction of these districts [1]. While policies are enacted about reducing the conflicts, public
participation mechanisms are stipulated such as public hearings, public deliberations, etc. As a result
of this, social conflicts had a sheer decrease. However, regulations and law often lack behind citizens’
actual needs. The public participation process at this stage is considered shallow or symbolic. Citizens
are informed and somewhat consulted and at times their interests may be neglected. The most common
participation mechanism is public hearings. In contrast, however, government and developers have the
dominant power to determine whether to conduct a certain project or not. Citizens are not empowered
to participate in core of decision-making in urban regeneration [11].

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IOP Conf. Series: Materials Science and Engineering 960 (2020) 032028 doi:10.1088/1757-899X/960/3/032028

Urban regeneration projects proved new characteristics nowadays after rapid development of
urbanization in the past 10 years. Meanwhile, complexity of urban regeneration projects is evolving,
Significantly, the goal for urban regeneration is transitioned from simply urbanization to industrial
transformation and sustainable development. As a result, traditional decision-making approach
dominated by government or developers of decision-making may not be appropriate for the complex
situations in urban regeneration projects nowadays. To better support decision-making in urban
regeneration projects, there witness numerous of evidence in regenerations projects in China using
public participation mechanisms. Zhang and Li [7] studied Enning Lu districts renovation in
Guangzhou and pointed out that non-government organizations (NGO) is a critical component in the
urban regeneration projects. Li and Wang [12] applied Qinghe experiment group in Beijing to
illustrate how citizen participation can benefit community renovation. Li and Zhu [13] established a
decision-making model of responsive subject between government officials and citizens to innovate
public participation mechanisms and applied it to Shanghai Tianzifang regeneration project. And
Dong [14] emphasized the importance of community empowerment in promoting public participation
in urban regeneration projects using comparative cases. Urban regeneration at this stage emphasized
the sustainable relationship between cities and citizens. So how to innovate the mechanism of public
participation in urban regeneration projects in China becomes necessary. The characteristic of the
small-scale, gradual mode of regeneration gives a chance for the public to participate. Down-top
activities arose such as the Enning street renovation which is initiated by the university students who
have relevant knowledge about urban planning and historical protection.

3. Analysis and recommendations for public participation in urban regeneration

Tracing back the development path of public participation in urban regeneration projects, we can see
that China is paying more and more attention to the role of diverse stakeholders in decision making of
urban regeneration projects. Efforts are made to promote the democracy and efficiency of decision
making and different public participation mechanisms are employed in urban regeneration projects.
However, social conflicts in these projects still exist and public participation is thought to be symbolic.
In order to find out the gaps between theory and practice, this study analyses citizens’ competence of
participating in urban regeneration projects, necessary resources supported by authorities for
participating in urban regeneration projects and a set of rules established for public participation and
depth of public participation.

3.1. Citizens’ competence of participating in urban regeneration projects

Citizens’ competence of participating in urban regeneration projects is analysed and policy
recommendations are offered to overcome the barriers of public participation process.

3.1.1. Analysis of the problem. It’s still doubtable whether citizens are fully rational characters when
making decisions on complex issues. Citizens’ competence of participation is a major concern among
the scholars. Citizens have a relatively low level of knowledge regarding urban planning and it may be
difficult for them to persuade others in the participation process as a lack of special training and
targeted resources. Some citizens may be rational and make calculus-based decisions while others rely
more on intuitions and make irrational decisions. Some citizens may not have the necessary respect in
deliberation and cooperation with other participants and may lack a full understanding of specific
restrictions of the local authorities. Citizens’ motivations to participate has been discussed in the
literature. Their motivations to participate is their interests on the issues and the extent to which it
relates to them [15]. They may be likely to focus more on narrow self-interests instead of public
interests. Citizens often pay more attention to issues related to their direct interests, such as
resettlement compensation plans after demolition of their houses. It turns out that if they feel their
concerns are being considered and they can influence the final decisions, they are more willing to
participate. Citizens participate actively when the issues relate to their community’s immediate
interests [16]. Citizens may need some material incentives such as money and gifts On issues related

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IOP Conf. Series: Materials Science and Engineering 960 (2020) 032028 doi:10.1088/1757-899X/960/3/032028

to wider interests. For example, in the case of urban village reconstruction in Guangzhou, citizens are
mainly concerned about the "property ownership of illegal buildings" and "relocation compensation
and resettlement issues", but there is insufficient understanding of the protection of historical streets.
Under the traditional “up-down” governance, citizens may think decision-making may be the
government’s responsibility rather than their own and they may hope someone can represent their
opinions. In particular, in the old deteriorating areas, citizens have relatively low levels of education
and income, and their role in participation is very limited. In the public participation process, the
conversation may be dominated by those who possess more resources and the marginal group may
have less chance to voice their concerns [17].

3.1.2. Policy recommendations. Non-Governmental Organizations in urban regeneration projects are

groups which voluntarily formed by the citizens, lawyers, quantity surveyor, etc. and somehow
supported by the government. Citizens are expected to promote their interests more effectively in
groups rather than working as individuals. Multiple, diverse, and autonomous advocacy groups such as
housing committee and relocation group in urban regeneration projects exist to centralize multiple
interests among the citizens and provide staff and resource support. While such organizations relate
closely to the government institutions and may be not so attractive and influential to citizens.
Establishment of such groups supported by universities and professionals may help citizens to express
their opinions. Community planner is also helpful for explaining professional knowledge to citizens
and getting them more involved in the decision-making process.

3.2. Necessary resources supported by authorities for participating in urban regeneration projects
Necessary resources supported by authorities for participating in urban regeneration projects is
analysed and policy recommendations are offered to overcome the barriers of public participation
process.

3.2.1. Analysis of the problem. It’s still questionable whether adequate staff and other necessary
resources (e.g. illustrating material) are supported by proper channels. Necessary resources may be an
important component when citizens participate. Participants need time and energy to learn about the
issues and they need such skills as communication skills and team working skills. However, the costs
of gaining the knowledge, information, and expertise for citizens to participate effectively is high [18].
As a result of this, it was difficult for citizens to maintain participation efforts and there was a
tendency to rely on a few committed individuals in participation. There is some evidence that the
government officials’ attitudes and behaviours relate to resources supported to citizens. Institutional
arrangements, performance incentives, perceptions towards participation, time and resource limitations
are salient variables affect government officials’ attitudes and behaviour towards participation in
urban-regeneration projects. Government officials may think that the public participation process
slows down decision making which add an extra stage to the process [2]. Cost of participation are
important variable limiting the government officials’ behaviours. Resources from local authority may
not be able to meet the actual needs [8].

3.2.2. Policy recommendations. Adequate staff and other resources necessary are needed for an
effective public participation process in urban regeneration projects. When inviting everyone to the
table to deliberate on certain issues regarding urban regeneration, authorities are ought to give citizens
the tools and resources they need. Use of the social media via internet may help. Information materials
should be offered to participants to make sure transparency of public participation process and the
quality of information materials should be high. Information materials should have credibility and
can’t be biased to any group. Visualization technology such as GIS can help to communicate
information to participants. Many citizens are eager for more information about how to contact the
government and they need more ‘eye-catching’ information on services and activities regarding
participation. The questions of citizens’ awareness about opportunities to participate and perceptions

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about influence on the final decisions need to be further investigated. It’s still unknown the extent to
which they know the existing institutional channels and existing tenants’ associations or other
informal associations in their area. Institutional channels including China’s petitions (xinfang) system,
the residential committees or juweihui, the Party committee or dangweihui, people’s congress system
at the national, provincial, city, county, and township levels, people’s congress representative etc play
an important role in public participation for citizens to express their opinions.

3.3. A set of rules established for public participation

A set of rules established for public participation is analysed and policy recommendations are offered
to overcome the barriers of public participation process in urban regeneration projects.

3.3.1. Analysis of the problem. It’s still unknown whether there are a set of rules to answer the
questions of participants selection, process facilitation, times and resources organization, etc. Legal
requirements mean the requirements stipulating the ways of participation which can constrain or
enhance participation outcomes [19]. In Hangzhou, for example, the ways of making opening
government decisions are dictated. The literature shows that formalization of the participation process
also affects the outcome of the participation. Government officials are constrained by institutional
arrangements such as red tape and hierarchical authority [20]. They may not have the authority to
decide the mechanism of public participation. Their behaviours are constrained by political control and
manipulated by the higher authorities [21]. The government officials in authoritarian regimes may
need to follow upper-level mandates when making decisions thus legislation and formalization of the
public participation process is crucial.

3.3.2. Policy recommendations. Participants selections methods, process organization ways,

information disclosure, and feedback to citizens need to be clarified and formalized. Participants
selection procedure need to be stipulated to guarantee representativeness of the participants. Whether
those who participate in the process can be truly representative of those who don’t participate is a
major concern. In the urban-regeneration project, the developer, tenants, and consultants such as urban
planner hold different beliefs. The developer may seek profits and want to shorten the demolition
periods. The tenants may seek sufficient compensation. The consultants are in a neutral position which
seeks to attain the balance between social and economic goals. Platforms and venues for participation
are needed and the initiators, sponsors and facilitators ought to be clear when designing participation
process. Much of the research has focused on disclosure of the information. Different information
materials are offered to participants based on different mechanisms and only if the participants have
access to sufficient information can they participate well. Feedback mechanisms may be an important
variable in the process design according to the research. Timely respond to the questions, comments
and requests proposed by participants and they will make sure they are being heard and their concerns
are considered. Participants may fail to link the results of consultation with decision-making processes
if they don’t receive timely feedback. Citizens need to be informed of the outcome and the reasons
why final decisions didn’t take their concerns into account or the decisions even go against popular
opinion.

3.4. Public participation in terms of depth

Depth of public participation is analysed and policy recommendations are offered to overcome the
barriers of public participation process in urban regeneration projects.

3.4.1. Analysis of the problem. It remains insufficient in terms of participation depth in the
“participatory ladder” and rationality in the participatory mechanism. The “ladder” of empowerment
includes eight rungs: manipulation, therapy, informing, consultation, placation, partnership, delegated
power, and finally, citizen control [22]. These can be summarized into three categories: to inform, to
consult, to empower [15]. Citizens are just informed or consulted in public participation process in

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IOP Conf. Series: Materials Science and Engineering 960 (2020) 032028 doi:10.1088/1757-899X/960/3/032028

urban regeneration projects and they don’t know whether their opinions affect the final decisions.
Government officials’ trust on the citizens may affect the officials’ perceptions toward participation.
They may have concerns about sharing powers with citizens on complex issues of urban regeneration
projects and perceive citizens to be ill-informed or incapable of providing sound suggestions.
Government officials may feel that citizens already have sufficient access to participation [17] and are
not willing to empower the citizens to promote the process of public participation. If they have a better
understanding of public participation and they have more trust on the citizens, they tend to be in
favour of public participation.

3.4.2. Policy recommendations. The characters of the issues and objectives of certain issues determine
the depth of participation. The literature shows that clarity about the purpose of the participation
process in important for designing participation processes because it can help avoid unnecessary or
unwise expenditures of efforts and resources. Clarification purpose is not one-off, because the context
may change and it may be desirable to involve citizens in producing the purposes of participation
issues. The form of public participation takes are a major concern among the scholars and
practitioners. Different mechanisms are adapted to different objectives. Mechanisms may vary during
different phase of the project. Public hearings, focus group meetings may be normal channels when it
comes to urban-regeneration projects in china. Participant selection, communication and decision,
authority and power are three crucial dimensions of public participation. Practitioners have developed
many techniques to recruit participants such as self-selection, selective selection, random selection, lay
stakeholder selection, professional stakeholders etc. Different participation method may be used
according to different issues. Public participation processes can employ one-way, two-way and/or
deliberative communication modes. Participants may only be informed when the plans are made.
However, when the compensation plans are made, they may need to deliberate with the citizens. The
level of empowerment should meet expectations of the participants. Different characters of the issue
and different participation objectives determine whether to participate and how to participate.
Participation mechanisms need to fit with the goals and multiple mechanisms may be used during
different phase of the participation.

In summary, this study analyses the reasons why public participation processes in urban
regeneration projects didn’t perform expectedly and propose guidelines for practical use, as shown in
following Table 1.

Table 1. Analysis and recommendations.

Items Analysis
Relevant knowledge
Citizens’ competence
Self-interests oriented
A lack of resource support
Necessary resources
Restrictions from authorities
Vague stipulations
A set of rules
Hierarchical authority
The “ladder” of empowerment
Depth of participation
Trust from authorities
Recommendations
Non-Governmental Organizations
Community planner
Information technology
Proper channels
Clarification of process design
Information disclosure
Clarity about the purpose
Proper participation mechanisms

4. Conclusions
In China, urban regeneration projects have arisen along with the fast-paced Chinese urbanization rate,
which is different from urban regeneration projects in developed countries according to their
urbanization process. Public participation is widely applied to urban regeneration projects to promote
the legitimacy and democracy of decision-making. However, the current public participation
mechanisms in China have failed to well address real needs.

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To narrow this research gap, we analysed public participation processes in current urban
regeneration projects from four aspects: (1) Citizens’ awareness of public participation is gradually
forming and ascending and their capability to participate in public affairs have constrained the
performance of the participation to some degree. Institutions such as NGOs or community planners
may help citizens get more involved in decision-making process; (2) The government’s role in
fostering NGOs and providing necessary resources to equip the community with sufficient tools and a
channel is crucial for promoting public participation exercises in urban regeneration projects; (3) A set
of rules to answer the questions of participants selection, process facilitation, times and resources
organization need to be established. Formalization and careful design of the public participation
process may be helpful; (4) Citizens are not fully empowered for decision-making and that public
participation practice is still dominated by the government, while citizens or the community remain
peripheral. One potential solution is to adjust the existing top-down participation mechanism to a more
citizen-friendly bottom-up approach so that the voices from the community can be heard and valued.

There is increasing enthusiasm for public participation in public affairs and interactive activities
among the stakeholders both in theory and practice. Though current public participation mechanisms
haven’t well addressed the new problems of urban regeneration projects, it does not mean that public
participation is not necessary. Instead, it emphasizes the importance to develop better mechanisms to
meet the real needs in urban regeneration projects. There are still some limits in this article to be
further explored in the future using empirical methods. Different opinions among stakeholders may
need to be further investigated.

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